City of Clovis. General Plan Housing Element Update

Transcription

1 City of Clovis General Plan Housing Element Update Adopted September 3, 2002 Clovis Community Development Agency and Planning and Development Services Department City Hall Fifth Street. Clovis, CA 93612

2 City of Clovis General Plan Housing Element Update City Council Jose Flores, Mayor Lynne Ashbeck, Mayor Pro Tem Harry Armstrong Nathan Magsig Pat Wynne City of Clovis Kathy Millison, City Manager Jeff Witte, Assistant City Manager Planning Commission Hugh Willoughby, Chair Greg Ayello Thomas Berg Joe Chaidez (past commissioner) John Wallace Doug Whipple Clovis Community Development Agency Mike Dozier, Director Tina Sumner, Housing Project Manager Sharon Walther, Principal Clerk Typist Monica Yepez, Redevelopment Technician Department of Planning and Development Services John R. Wright AICP, Director Dwight Kroll AICP, City Planner David E. Fey AICP, Senior Planner Neal Kennington, Assistant Planner Kristie Lamarsh, Planning Intern Steve Adams Keri Bourzac Carol Downs Dean Downs Vicki Dobbs Kathy Eide Michael and Misty Garcia Tom McLaughlin Citizens Advisory Committee Terry Meehan Gary Helmuth Steve Hunsaker Ellie Huston Sam Lucido Henry Raven Bonnie Trout Ray Vandervelde

3 TABLE OF CONTENTS Section 1 Introduction Consistency with State Planning Law General Plan Consistency Scope and Content Public Participation 3 Section 2.0 Issues and Intent Housing Affordability Projected Housing Need Available Land Inventory Housing Opportunities Housing Rehabilitation and Conservation Constraints to Affordable Housing Balanced Growth Equal Housing Opportunity Energy Conservation Infill Housing Inclusionary Housing Regional Housing Needs Allocation 10 Section 3.0 Evaluation of the 1993 Housing Element Discussion of Goals Discussion of Policies Relating to Goal Discussion of Policies Relating to Goal Discussion of Policies Relating to Goal Discussion of Policies Relating to Goal Discussion of Policies Relating to Goal Discussion of Policies Relating to Goal Discussion of Policies Relating to Goal 7 19 Section 4.0 Community Profile Population - City of Clovis Age Composition - City of Clovis Race and Ethnicity - City of Clovis Employment - City of Clovis General Income Characteristics - City of Clovis 29 Section 5.0 Housing Profile Housing Characteristics - City of Clovis Household Characteristics Households - City of Clovis Household Size - City of Clovis Housing Tenure - City of Clovis 34

4 5.2.4 Vacancy Rates - City of Clovis Housing Costs and Rents - City of Clovis 35 Section 6.0 Housing Needs Existing Housing Needs Housing Affordability Housing Quality Overcrowding Special Needs Elderly Persons Handicapped Persons Large Family Households Southeast Asian Population Female Heads of Household Farm Workers Homeless Projected Housing Needs Market Demand For Housing Projected Single-Family Housing Demand For All Income Levels Preservation of Assisted Housing Risk of Conversion Cost of Preservation versus Replacement Preservation Resources 56 Section 7.0 Residential Land Resources Available Land Inventory Annexation Estimated Dwelling Capacity by Land Use Designation Redevelopment Potential Opportunities for Energy Conservation 64 Section 8.0 Housing Constraints Market Constraints Construction Costs Labor Costs Land Costs Financing Profit, Marketing, and Overhead Other Non-City Constraints Governmental Constraints Land Use Controls Land Use Designations Municipal Code Building Codes and Enforcement Local Processing and Permit Procedures Environmental and Infrastructure Constraints Redevelopment 82

5 8.4 Monitoring 82 Section 9.0 Goals and Policies 83 Section 10.0 Housing Plan Provision of Adequate Housing Sites Land Use Element/Zoning Regulations Sites for Emergency and Transitional Shelters Community Development Block Grant Program (CDBG) Landbanking Density Bonus Ordinance Action Plan Provision for Very Low-, Low-, and Moderate-Income Housing Mortgage Revenue Bonds Section 8 Rental Assistance Payments/ Housing Vouchers Equity Sharing Section 202 Elderly or Handicapped Housing Accessory Units Mortgage Credit Certificate Program Nonprofit Corporations HOME Program California Housing Finance Agency Low Income Housing Tax Credit (LIHTC) Program Supportive Housing for Elderly Persons Action Plan - Assistance to Homeowners Action Plan - Assistance to Renters Housing Rehabilitation and Conservation Herndon Avenue Business Corridor Clovis Corridor Old Town Area Shaw Avenue Area Replacement Housing Preservation of At-Risk Units Redevelopment Set-Aside HOME Program Code Enforcement Low-Interest Rehabilitation Loans Mobile Home Park Assistance Program (MPAP) Rental Rehabilitation Program Emergency Housing Grants Action Plan Removal of Constraints Action Plan - Governmental Constraints Action Plan - Nongovernmental Constraints Energy and Water Conservation Opportunities Action Plan Promotion of Fair Housing Opportunities Equal Housing Opportunity 109

6 Housing Referral Directory Action Plan Housing Element Monitoring and Administrative Procedures Annual Reporting Housing Needs Data Base Consolidated Plan Action Plan 111 Section 11.0 Quantified Objectives Constructed Rehabilitated Conserved 118 Appendices

7 Section 1 Introduction This Housing Element is a comprehensive statement by the City of Clovis to facilitate development of housing that meets the needs of existing and future residents. These commitments are an expression of the statewide housing goal of "attaining decent housing and a suitable living environment for every California family as well as an expression of the concern of Clovis residents for the attainment of a suitable living environment for every Clovis family. 1.1 Consistency with State Planning Law The Housing Element is one of the seven General Plan elements mandated by the State of California. Sections to of the California Government Code contain the legislative mandate for the housing element of the General Plan. Article 10.6 was added to the Government Code in 1980 and incorporates into law Housing Element Guidelines established by the California Department of Housing and Community Development (HCD). In addition, this section changed HCD's role from "review and approval" to one of "review and comment" on local housing elements. Article 10.6 also requires an update of the housing element every five years. Government Code Section states that "the Housing Element shall consist of an identification and analysis of existing and projected housing needs... and programs for the preservation, improvement and development of housing.... The residential character of the City is, to a large extent, determined by the variety of its housing and the location and maintenance of the housing. The Housing Element is an official municipal response to the need to provide housing for all economic segments of the community. It establishes policies that will guide City decision-making and sets forth an action program to implement housing goals through General Plan Consistency The Housing Element of the General Plan is only one facet of Clovis planning program. The California Government Code requires that general plans contain an integrated, internally consistent set of goals and policies. The Housing Element is, therefore, affected by development policies contained in the Land Use Element, which establishes the location, type, intensity, and distribution of land uses throughout the City. In designating total acreage and density of residential development, the Land Use Element places an upper limit on the number and types of housing units constructed in the City. The acreage designated for industrial, commercial, and office, as well as the mixed-use designation, creates employment opportunities at various salary levels. The presence and potential for these jobs affects the current and future demand for housing at various income groups in the City. With regard to assumptions, the General Plan uses uniform existing and projected population, employment, and dwelling unit figures. This data has been generated from City land use data, Council of Fresno County Governments data, and U. S. Census data. The Circulation Element also affects the implementation of the Housing Element. The Circulation Element establishes policies for providing essential streets and roadways to all housing that is developed. The policies that are contained in the other elements of the Clovis General Plan Housing Element 4-1

8 General Plan affect the quality of life that citizens expect, the amount and variety of open space and recreation areas, acceptable noise levels in residential areas, and programs to provide for the safety of the residents. 1.3 Scope and Content Section of the California Government Code requires specific components to be contained in a housing element. These components are: A housing needs assessment and an inventory of resources and constraints that are relevant to meeting those needs. The assessment and inventory must include: Housing Needs Community Profile Housing Profile Land Resource Inventory Governmental and Nongovernmental Constraints Analysis Analysis of Special Needs Housing Analysis of Energy Conservation Opportunities Identification of Assisted Units "At Risk" of Conversion A statement of the community's goals, quantified objectives, and policies relative to the maintenance, improvement, and development of housing. A program which sets forth a five-year schedule of actions the local government is undertaking or intends to undertake to implement the policies and achieve the goals and objectives of housing elements through the administration of land use controls, provision of regulatory concessions and incentives, and the utilization of appropriate federal and state subsidy programs. This Housing Element Update modifies the Housing Element adopted by the City in 1993 and ensures internal consistency with other elements of the General Plan and the Land Use Plan. The scope and content of this Housing Element Update also reflects the relationship to the recently approved City of Clovis sphere of influence (SOI). The 1993 General Plan update created, in essence, two geographical areas within which analysis of housing needs was based. The first area included the City of Clovis and its then-approved sphere of influence that was determined to provide sufficient residential land to meet local housing needs through The second area was a much larger regional Study Area, which contained Clovis and its SOI and included unincorporated Fresno County lands adjacent to the community. This Study Area was included in the update analysis to catalyze discussion of Clovis truly longrange growth issues. In December 2000, the Local Agency Formation Commission approved an expanded SOI for the City of Clovis. The approved SOI provides an additional 5,475 acres for the city s urban growth for a total of 20,195 acres. The larger Study Area remains as a long-term standard for the growth of Clovis, though it is not legally binding. Clovis General Plan Housing Element 4-2

9 1.4 Public Participation The California Government Code requires that local government make a diligent effort to achieve public participation from all economic segments of the community in the development of the housing element. During the preparation of the Housing Element update, public input was actively encouraged. In the preparation of the Housing Element Update, a number of organizations and agencies that provide housing, or housing related services, were contacted. Responses from these groups helped guide the housing needs assessment portion of the Housing Element, as well as the five-year action plan. The Clovis Public Participation Plan for the Housing Element update included: The City Council appointed 17 interested citizens to a Citizens Advisory Committee. The Committee consisted of citizens from the following segments of the Community: Single Family Housing Development Lending Social Services Realty Apartment Development Senior Citizens Industry/Commercial Clovis Unified School District Citizens at Large The committee met five times during the update process to provide input and assistance to City staff. Two of the committee meetings were advertised public meetings. City staff planned and produced a 30-minute broadcast production on affordable housing and the Housing Element process. The production was broadcast on the AT&T Broadband public access channel 30 times over the course of the update process. In addition to being informational, the broadcast also gave contact information for most jurisdictions in the County. An information meeting was held at the City of Clovis Senior Center. Two publicly noticed study sessions were held before the Planning Commission and City Council. Noticed public hearings were held before the Planning Commission and City Council. The update draft was available for review at City Hall, the Senior Center, and the public library. The Draft and Final Housing Element were circulated to the Department of Housing and Community Development for review and comment. Clovis General Plan Housing Element 4-3

10 Section 2.0 Issues and Intent The City of Clovis has adopted a high standard of development and community character; namely, to accommodate urban growth while maintaining its small town nature. The Housing Element is an integral part of the General Plan with the intent of setting forth goals, policies and actions to achieve planned and orderly development in the Clovis Project Area, yet maintaining the small town atmosphere representative of the community. The Housing Element promotes balanced residential development as well as a range of housing options available to existing and future residents of the City. Housing in Clovis is a complex issue, consisting of at least three components: housing affordability, housing quality, and number of housing units. In addition, certain segments of the population have traditionally experienced difficulty in obtaining adequate housing. The elderly, handicapped persons, female heads of household, Southeast Asian families, large families of five or more persons, and farm workers are considered to have special housing needs. The use of zoning in general and a conditional use permit (CUP) process in particular is a valid exercise of the city s legitimate police power when evaluating housing projects. Understandably, the State has raised concerns about a local agency's ability to use the CUP process to unreasonably constrain housing projects by using the entitlement process to place excessive burdens on such projects. The city is supportive of this concern. Through the exercise of its housing goals and policies, Clovis intends to continue to advocate for safe, decent, and affordable housing projects through its planning and zoning functions. There are three factors that reduce the potential for excessive burdens that may constrain housing projects. Recent court cases including but not limited to the Nolan and Dolan cases require exactions to be roughly proportional to a project s potential impacts and demands for service. Second, the findings required for the issuance of a CUP are a recognized means of protecting the general welfare of the persons in the project and ensuring that the project functions compatibly within the project s vicinity. Last, the city s use of the CUP process is defined in the Clovis Municipal Code and focuses on consistently applied analysis and conditions of use. CUPs are subject to noticed public hearings and opportunities, both administrative and quasi-legislative, for appeal of conditions by the applicant. The city evaluates all development proposals--commercial to residential, open space to industrial projects--with a project-specific analysis as permitted under state planning law Government Code section et seq., and the California Environmental Quality Act and its Guidelines, Public Resources Code sections et seq. and et seq., respectively. Under the planning law, the Legislature declared its intention to provide only a minimum of limitations in order that cities may exercise the maximum degree of control over local zoning matters. This section also states that no provisions of this code or any other code or statute shall restrict or limit the procedures provided in this chapter by which the legislative body of any city enacts, amends, administers, or provides for the administration of any zoning law, ordinance, rule or regulation. For these reasons, the entitlement process, including the CUP process, is not considered an unreasonable constraint upon the provision of housing. Further, it has not hindered Clovis from meeting its share of the regional housing need. Clovis is confident that its past Clovis General Plan Housing Element 4-4

11 performance demonstrates its commitment to state and city housing goals and that it is striking an optimal balance between serving the civic values of its citizens with the state s performance and housing allocation standards. 2.1 Housing Affordability State housing policy recognizes that cooperative participation of the public and private sectors is necessary to expand housing opportunities to all economic segments of the community. Historically, the private sector generally responds to the majority of the community's housing needs through the provision of market rate housing. However, the percentage of population who can afford market rate housing is declining. Should the income-to-cost disparities continue in the years ahead, the ability of the housing industry to produce affordable housing for any segment of Clovis' population may be further diminished. The high correlation between income deficiencies and housing problems (affordability and maintenance) indicates the need to develop the means to assist low- and moderate-income households with their housing needs. Although government subsidized housing programs will continue to be instrumental in improving the living conditions of those households, other actions are also essential to deal with these needs. In addition to the challenge of meeting current housing needs, provision must also be made to satisfy the housing needs of the future. It is reasonable to expect that many of the newly formed households will have deficient incomes to afford adequate housing. As in the past, these low income families will, in many cases, be unable to satisfy their housing needs through the market rate inventory, making government-assisted housing programs essential and supporting the need for economic development activities which produce new jobs and higher wages. It is a primary goal of the City of Clovis to adopt local policies and procedures that do not unreasonably add to escalating City costs to provide affordable housing to its residents. Although state and local governments, as well as private industry, have important roles in the provision of assisted housing, federal funding of existing and/or new housing programs is essential to the provision for very-low, low- and moderate-income households. Without that resource, the ability of local government to address the housing needs of these income groups is reduced. However, in recent years federal and state policies have shifted costs to local governments on the theory that they can increase or create fees to pay for public services. This has added significantly to the cost of housing and diminished resources to assist the very low- and low-income groups. The City of Clovis will need to address a number of specific concerns which may prove critical to meeting future housing needs, especially if housing costs continue to increase at current rates. As housing costs rise, future housing needs will result in a greater demand for less costly housing types like multiple family units and creative mixed-use products. While the Land Use Element provides for a full range of housing types and densities, it is only part of a matrix of decision that influences housing. Future decisions of the City regarding public improvements, zoning and development standards will help influence the development of multiple family housing and creative housing products will be successfully utilized in meeting anticipated housing needs. As the City of Clovis pursues annexation of unincorporated developing areas, it has an opportunity to engage in proactive efforts towards ensuring that affordable housing develops commensurate with overall residential growth in the City. The Clovis General Plan Housing Element 4-5

12 three Urban Center Specific Plan Areas identified in the General Plan are based on the concept of providing a range of housing opportunities, with higher density residential and mixed-use areas. These combine high density residential with employment generating and service uses in proximity to employment centers and Village Centers. 2.2 Projected Housing Need The City of Clovis has experienced significant growth over the past decade. Housing unit growth has lagged behind population. For example, between 1980 and 1990, the population has increased over 50% (from 32,871 to 50,133), while the total number of housing units has grown by 41% (from 13,360 to 18,888). Between 1990 and 2000, population increased 35% (from 50,133 to 67,988), and housing units grew by 33%(from 18,888 to 25,250). Although the prices of market rate housing continue to rise, the demand still remains. For many reasons, including a long-term decrease in interest rates, construction defect litigation, and changes in the federal tax code, most of the residential construction has been for the single-family market rather than the multiple-family market. The Council of Fresno County Governments (COG) 2001 Regional Housing Needs Allocation Plan (RHNA) indicates a projected need of 6,410 housing units for the City of Clovis by This number includes 375 housing units originally allocated to Fresno County within the Clovis SOI but accepted by the City of Clovis. During discussions of each Fresno County jurisdiction s share of housing units for the Regional Housing Needs Allocation Plan, it was agreed that within Clovis SOI the County would plan for certain areas and the City would plan for other areas. To satisfy HCD, Fresno County and Clovis would have an understanding of the areas in which each jurisdiction would plan, making sure not to overlap areas. The final allocation of housing units to the City was based on Clovis and Fresno County agreeing that the City would plan for areas outside the City limits. It was agreed that Clovis would plan within its previous sphere of influence and a small portion of the Southeast Plan Area of the current sphere of influence. Housing prices in Clovis are still low enough that the above-moderate and moderate-income households will be able to find affordable market rate housing as purchasers or renters. The RHNA does not take into consideration the lower cost housing left vacant as households move up in the housing market. Many of the low- and very low-income households will find affordable rental housing through this upward mobility of other households. Individuals and households with "special needs" are those whose housing requirements go beyond just a safe and sanitary dwelling at an affordable price and include either unique physical or sociological requirements, or both. Included in this category are senior citizens and handicapped persons who have particular physical needs as well as sociological needs unique to their group; large families who need four, five, or more bedrooms in a dwelling; farm workers who move from one location to another for all or part of a year or only work and receive income for a part of the year; homeless persons who cannot afford permanent housing; and families with female heads of households who often represent unusually high percentages of very lowand low- income households as well as having needs related to location and size of unit. Clovis General Plan Housing Element 4-6

13 Not all persons and households in Clovis with "special needs" are in the lower income groups, but it is assumed that where sufficient income is available, these special needs can be satisfied. Special needs groups with low or limited incomes are those targeted by the action plan. 2.3 Available Land Inventory The General Plan establishes land planned for residential growth. General Plan policies encourage in-fill development of vacant and undeveloped lands both presently within the City of Clovis and within a reasonable distance from existing public sewer, water and street systems. Adopted specific plans designate land for a variety of residential densities and types. Lands proposed as Urban Centers, for which a specific plan will be required for implementation, also delineate a mix of residential land use potential. These areas outside of the current City boundary and designated for residential uses by the General Plan or a specific plan will be zoned to urban residential classifications upon annexation to Clovis. (It is important to note that present City/County policy encourages urban development to take place within cities where urban services and facilities are available. The County's Urban Referral Policy requires that all development requests within 1/2 mile of the City's fringe be referred to the City for annexation.) 2.4 Housing Opportunities A balanced inventory of housing in terms of unit type, cost, tenure and style promotes a range of housing options that are necessary to support an economically and socially diverse community. While the Land Use Plan promotes new growth in the City and SOI, it is not to occur at the expense of the unique quality of life and community character that the City of Clovis embodies. Improvements to existing residential neighborhoods simultaneously with new development based on the Urban Village concept emphasizes the effort to integrate future areas of the City with the "small town" character of Clovis. 2.5 Housing Rehabilitation and Conservation Although the assessment of current housing needs indicates that the majority of Clovis' population is adequately housed, it also clearly illustrates that a certain segment of Clovis households are experiencing housing quality problems. The Housing Condition Survey performed for the Housing Element update indicates that 4,255 homes need some level of repair. It is noted that this phenomena is due in large part to the deterioration of 1970 s-era wooden shake roofs that are coincidentally reaching the end of their 30-year life expectancy at the time of the survey. These roofs are showing the classic signs of deterioration missing or misplaced shakes and excessive splitting on houses that would otherwise not be considered to exhibit unsatisfactory building or property conditions. Part of the need for rehabilitation stems from the fact that many of the Community s oldest dwellings were built prior to local building codes and planning regulation. Many were constructed without proper safety features or were located in areas subject to natural hazards, particularly rural residential and low-density residential units within flood prone areas. In other Clovis General Plan Housing Element 4-7

14 cases, lack of planning allowed development of housing without supportive services and facilities. In some of Clovis' low-income neighborhoods lumber seconds and scraps from the lumber mill were used to construct inexpensive homes. Consequently, the quality and desirability of many of these dwellings diminished rapidly, and today they represent a large portion of Clovis' substandard housing stock. In addition, housing conservation is necessary to protect the stock of affordable housing units from being converted to other uses not benefiting lower income groups. At the present time, a number of residential units exist on property that is zoned or planned for commercial or transportation uses, generally falling within four areas: Herndon Avenue Business Corridor, Clovis Avenue Business Corridor, the Old Town area, and the Shaw Avenue Business Corridor. Development in these areas has been influenced by the completion of Highway 168 and the implementation of the Transit Corridor associated with the Railroad Plan. Generally, these homes are substantially older, and a good deal of the useful life of these units is expended. While these units are old (50+ years) and in varying states of repair, they typically provide housing in the form of medium to larger sized single family dwellings in a rental range or purchase range that is more affordable to low-income families. The actual loss of singlefamily units due to mixed-use development and commercial growth is difficult to gauge in the short term. 2.6 Constraints to Affordable Housing Many factors affect the ultimate cost and availability of housing to the consumer, be it rental or owner occupied. The factors that either prevent construction or raise the cost of construction and/or improvement of housing can be considered constraints. Some of these constraints are the result of governmental actions; policies, regulations and standards, and some are nongovernmental market factors. However, governmental and nongovernmental constraints are interrelated and affect one another. Therefore, action programs that influence governmental constraints can also affect nongovernmental constraints. Nongovernmental constraints are beyond the control of local government and generally cannot be impacted by the actions of a City or County. However, certain actions by the City of Clovis can mitigate some of the adverse impacts of market constraints on a very localized basis. 2.7 Balanced Growth Residential development that is responsive to the built environment is important in maintaining the quality of life highly valued by residents of the Clovis community. The adequate provision of infrastructure and services is considered a necessary qualification to residential development in order to ensure that future growth does not adversely impact the community. The General Plan creates an economically diverse, viable community by providing housing to support the needs of its employers and employees. 2.8 Equal Housing Opportunity Although essential to meeting housing needs, the provision of a sufficient number of dwelling units will not in itself ensure that the entire population will be adequately housed. For example, households with sufficient income to purchase quality housing may be denied a choice of Clovis General Plan Housing Element 4-8

15 housing location because appropriate housing at acceptable cost is not adequately dispersed throughout the community. Inadequate distribution of affordable housing within a community or region is an important constraint to choice. Discrimination due to race, religion, or ethnic background is an equally significant factor affecting the renting or sale of housing. The City provides for a variety of housing types and densities to meet the needs of its residents, and upholds fair employment and housing practices. In order to prohibit housing discrimination practice in accordance with fair housing laws, effective implementation of housing programs is contingent on full coordination with federal, state and local agencies involved in the provision of housing, or housing related services. 2.9 Energy Conservation The City has promoted energy conservation for residential uses on both educational and regulatory levels. On a regulatory level, the City enforces the State Energy Conservation Standards (Title 24, California Administrative Code). This building code provides a great deal of flexibility for individual builders to achieve a minimum "energy budget" through the use of various performance standards. These requirements apply to all new residential construction as well as all remodeling and rehabilitation construction. The City has not adopted additional subdivision and site plan review regulations or policies that require compliance with specific energy conservation standards Infill Housing The feasibility of infill housing is influenced by many factors, most of which are outside of the City s direct influence. State housing law, the methodology and practicality of RHNA, lending practices, and construction defect litigation are a few of the external influences on infill development. On the local level, historic development patterns, the level of development fees, and the reaction of adjoining property owners protests to infill development effect the feasibility of infill projects. The Housing Element Update Citizens Advisory Committee indicated that policies more strongly supportive of infill development were necessary. This direction resulted in a recommendation by the committee for the addition of a new policy. Staff has included an action item to evaluate the financial support of infill development when it can be demonstrated that entitlement processing, building permit fees, and/or development impact fees are not proportionate to the actual cost of these services Inclusionary Housing The practice of requiring new residential developments to provide a minimal portion of the units at costs affordable to low- and moderate-income households is one option for the provision of affordable housing. Such a program is designed to spread affordable housing units throughout the city. As an alternative to providing affordable units, developers can pay in-lieu fees, which are deposited into an appropriate housing development fund. Clovis General Plan Housing Element 4-9

16 An action item of Goal 3 was to adopt a voluntary inclusionary housing program. A voluntary inclusionary housing program is not feasible. During the planning period of this document the City will examine how other jurisdictions operate an inclusionary housing program. A decision will be made as to whether an inclusionary housing program will be feasible in Clovis. Complicating the local acceptance of inclusionary housing is the relatively lower cost of housing in the Fresno-Clovis metropolitan area relative to Bay Area or Southern California communities where it is successfully implemented Regional Housing Needs Allocation Of particular interest to Clovis and all cities in Fresno County is the methodology used to determine its housing allocation. The use of 1990 income data to establish housing allocation numbers has, in the City s opinion, resulted in a skewed housing allocation. The state recognizes that the total housing needs identified may exceed available resources and a community s ability to satisfy these needs and that, in carrying out this responsibility, each local government also has the responsibility to consider economic, environmental, and fiscal factors and community goals set forth in the general plan. These issues are likely due to a greater involvement by the state with Bay Area and Southern California communities and a relative unfamiliarity with the issues that influence housing in the San Joaquin Valley. The RHNA includes language that defines the relationship between Clovis and the County s respective housing allocations within the city s sphere of influence. It establishes an equitable presumption of growth of these cities over the next five years. This is a productive result of dialog between Fresno, Clovis, and Fresno County. Of note during the development of the RHNA is the manual adjustment of the Housing Construction Need figures for the City of Clovis. As noted in the RHNA, during the 90-day revision period set forth in statute, the County of Fresno objected to its Housing Construction Need figures for the unincorporated Fresno Clovis Metropolitan Area (FCMA).... Several meetings were subsequently held to consider the County s objection and agreement was achieved on manual adjustments of the Housing Construction Need figures for cities and the County within the FCMA and East Valley market areas. Within the FCMA market area, the manual adjustment resulted in an increase of 375 units in Clovis, an increase of 1,125 units in Fresno, and a corresponding decrease of 1,500 units in the unincorporated portion of the FCMA. These units were allocated to the income categories for each jurisdiction in the same proportion as existed prior to the manual adjustment. [Clovis] and the County cannot both claim the same land area in their respective housing elements in order to provide an inventory of adequate sites to accommodate their respective RHNA Plan allocation by income category. Many cities in Fresno County may be able to accommodate their respective housing need allocation by income category within their existing jurisdictional boundaries. Other cities in the County, however, may need to annex land area within their respective sphere of Clovis General Plan Housing Element 4-10

17 influence in order to provide an inventory of adequate sites to accommodate their respective housing need allocation by income category. In this latter situation, a city must include within its housing element a housing program with specific actions that the city will take within the planning period to annex land area to provide for appropriate zoning, development standards, and infrastructure capacity in order to increase its total residential development capacity. Land area identified for annexation in a city s housing element program cannot be included in the County s housing element for providing adequate sites to accommodate its housing need allocation, except for building permits issued by the County prior to the boundary change. Transfer of a jurisdiction s housing need allocation during the planning period can only occur pursuant to Government Code Section 65584(c)(5). In accordance with the agreement between Clovis and Fresno County to facilitate the manual adjustment of 375 units from the Fresno County Housing Construction Need figure to the City of Clovis, the term "Adjusted Clovis Area" will be used in the Housing Element to refer to all land within the incorporated boundaries of the City, as well as the unincorporated land within the Clovis sphere of influence located north to Shepherd Avenue, and east to DeWolf Avenue. Clovis General Plan Housing Element 4-11

18 Section 3.0 Evaluation of the 1993 Housing Element Pursuant to Section of the Government Code, the City of Clovis has reviewed its 1993 Housing Element and has evaluated the appropriateness of its housing goals, objectives, and policies in contributing to the attainment of the State Housing Goal. The City has also appraised the effectiveness of the Housing Element in attainment of the community's housing goals and objectives, and the progress of the City in implementation of the Housing Element. The Housing Element has been revised to reflect the results of this review. 3.1 Discussion of Goals The goals of the 1993 Housing Element support policies that advance the legislative intent of the Housing Element. On a day-to-day basis, the goals serve as the guidelines to evaluate development proposals, focus requests for assistance, facilitate funding opportunities, promote effective intergovernmental communication, and guide budgetary decisions. The 1993 Housing Element goals are broad enough to encompass a range of policies and actions and have been found (through an examination of their policies) to serve the interests of the state and city. The goals remain appropriate for continuation in the 2002 update, and no changes to the goals are recommended. Staff and the Citizens Advisory Committee have evaluated the 1993 Housing Element policies. Based on this evaluation, adjustment of specific policies and action items is deemed appropriate for the update. These amendments are identified in the tables that follow Discussion of Policies Relating to Goal 1 Goal 1: A diversity of housing opportunities that satisfy the physical, social, and economic needs of existing and future residents of Clovis. The City of Clovis has provided sufficient land to accommodate residential growth for a variety of single-family homes and multiple family units. Through adoption of development standards for infrastructure, the City has minimized noncontiguous urban development. Policies established the timely processing of development applications, and the adoption of specific plans to streamline the planning and environmental process have supported the policies found in the General Plan. The mixed-use ordinance has not been written but use of the Mixed-Use designation to create project-specific conditions is an active component of the City s land use approval process and has been implemented on a project-by-project basis since An update of the City s Zoning Ordinance, referred to hereafter as the Development Code update, has been initiated and is expected to be completed by the end of The Development Code update will include the creation of the Mixed-Use ordinance envisioned in the 1993 General Plan. Clovis General Plan Housing Element 4-12

19 GOAL 1 A diversity of housing opportunities that satisfy the physical, social, and economic needs of existing and future residents of Clovis. ANALYSIS OF POLICIES RELATING TO GOAL Policy Results Explanation 1.1. Maintain a sufficient inventory of General and specific plans which Goal accomplished. developable land at varying have enabled annexation and - Recommend continue policy. densities to accommodate the development of residential existing and projected needed development. Limiting factor on housing supplies. annexations has been lack of taxsharing agreement and unresolved sphere of influence update rather than availability of planned residential land Promote the development of compatible mixed-use projects within the mixed-use designation that promote and enhance the urban village concept, facilitate the efficient use of public facilities, and support alternative transit modes Encourage and participate in efforts designed to achieve economies and efficiencies which will facilitate the production of quality, affordable housing Promote balanced, orderly growth to minimize unnecessary development costs adding to the cost of housing Encourage residential development that provides a range of housing type options in terms of cost, density, type, and occupancy status, and provides the opportunity for local residents to live and work in the same community by balancing job opportunities with housing types Discussion of Policies Relating to Goal 2 Staff is supportive of innovative mixed-use projects. However, few have been proposed due to the lack of a mixed-use zone district. The recently initiated Development Code update will provide for such a land use-planning tool. The City, through its redevelopment agency, is working with nonprofit housing providers to create more affordable housing. The City also works with the local Building Industry Association (B.I.A.) to arrive at off-site costs that result in creating a housing market that is accessible to more families. Through the adoption of off-site improvement requirements, the City has encouraged orderly growth and minimized unnecessary developmental costs. Through the adoption of specific plans, the City has provided housing opportunities for all entry levels; multiple family housing as well as detached housing on lots as small as 6,000 sq. ft. to large expensive homes on lots in the 14,000 to 18,000 sq. ft. range. Goal in abeyance. - Recommend amendment of this policy: Support mixed-use projects that promote and enhance the adopted goals and policies of the Clovis General Plan. No specific standards; however, the City is working with local nonprofit housing providers and the B.I.A. to continue promoting economic building conditions. - Recommend continue policy. Goal accomplished. - Recommend continue policy. Goal accomplished. - Recommend amendment of this policy: Encourage residential development that provides a range of housing types, cost, density, and occupancy status. Recommend new policy 1.5: Encourage residential development that provides the opportunity for local residents to live and work in the same community by balancing job opportunities with housing types. Goal 2: Balance growth between housing production, employment, and provision of services. Clovis General Plan Housing Element 4-13

20 The City of Clovis, through the adoption of five specific plans, has taken positive steps to manage neighborhood environmental factors such as traffic flow, school locations, parks, and open spaces in addition to minimizing the impacts on the area's natural resources. Specific Plans in conjunction with rigorous enforcement of building code standards have resulted in improvement to the safety and integrity of neighborhoods. Discussion with the Housing Element Update Citizens Advisory Committee indicated that policies more strongly supportive of infill development were necessary in order to balance the benefit provided by this type of housing with the costs of entitlement processing, building permits, and development impact fees. This will be added as an action item under Goal 2. GOAL 2 Balance growth between housing production, employment, and provision of services. ANALYSIS OF POLICIES RELATING TO GOAL Policy Results Explanation 2.1. Direct new housing development to viable communities where essential public facilities can be provided and employment opportunities, educational facilities, and commercial support are available Provide for adequate infrastructure and services to meet demands generated by residential development Provide that new housing be constructed in accordance with design standards that will ensure the safety and integrity of each housing unit and provide for the development of attractive and functional housing Require a mixture of diverse housing types and densities in new developments, around the village centers and within mixeduse areas to enhance their people orientation and diversity Encourage residential development to be designed to preserve and enhance important environmental resources, maintain important areas as open space, and provide access to alternative transit systems Manage neighborhood environmental factors such as traffic flow, school locations, parks and open spaces, and other public uses to stabilize and upgrade neighborhoods and dwellings. The annual Capital Improvement Budget and 5-year Capital Improvement Program are designed to meet the long-term growth needs of the City as set forth in the City s plans. Funding and scheduling for improved and new urban services are included in each annual budget approved by the City Council. Individual development proposals are evaluated for sufficient urban services. The City Building Division has adopted building codes and enforces all applicable safety regulations. Housing types are a function of market demands. Through its administrative and zoning regulations, the Planning Division is supportive of diverse housing types. The specific plans that the City adopted identify the natural resources in the area and make provisions for minimizing any impact on these resources. The specific plans provide for appropriate living environmental factors in each plan area. However, this policy can be linked to capital budgetary decisions. Goal accomplished. - Recommend continue policy. Goal accomplished. - Recommend continue policy. The intent of this policy are functions of building code enforcement, making this policy redundant. - Recommend deleting this policy. The housing market in Clovis is supportive of diverse housing types. - Recommend amending this policy: Encourage a diversity of housing types in mixed use areas, village centers, and other areas in the City to support the Clovis community values. This policy is repetitive of Open Space Element Goals 3, 4, 8, and 10 and their respective policies and action items and the project-specific CEQA analysis performed for all development projects. - Recommend deleting this policy City is in compliance with the stated policy. - Recommend amending this policy by moving it under Goal 4 as new policy : Manage neighborhood environmental factors to focus on neighborhood preservation and stabilization. Clovis General Plan Housing Element 4-14

21 3.1.3 Discussion of Policies Relating to Goal 3 Goal 3: Affordable housing for all economic segments of Clovis. The policies outlined in support of Goal 3 have largely been accomplished through the development of five specific plans. The specific plans used citizen advisory committees to study and make recommendations on various aspects of housing within each specific plan area. Further, the programs of the Clovis Community Development Agency have accomplished the rehabilitation, maintenance, and development of affordable housing units. GOAL 3 Affordable housing for all economic segments of Clovis. ANALYSIS OF POLICIES RELATING TO GOAL Policy Results Explanation Through the City s specific plans and programs of the Clovis Community Development Agency (CCDA), the City has encouraged various types of housing opportunities in all residential portions of the City, as well as maintenance of the existing housing stock Promote a variety of housing opportunities that accommodate the needs of all income levels of the population and provide opportunities to meet the City's fair share of low- and moderateincome housing Develop and implement regulatory actions that will advance the production of units affordable to low- and moderate- income households Support innovative public, private, and nonprofit efforts in the development of affordable housing, particularly for the special needs groups Pursue all available forms of private, local, state, and federal assistance to support development or purchase/rental of affordable housing Develop programs addressing the loss of assisted units because of conversion to market rate units or physical deterioration Discussion of Policies Relating to Goal 4 City development fees are maintained at their lowest level; City plans provide for a range of housing types, densities, and lot sizes. Through projects such as Self-Help Enterprises, the City is supportive of these efforts. City has used federal (CDBG and HOME) and state (CHAFA) bond financing and tax increment funding. CCDA also participates with HUD Section 108 and Section 202 and BEGIN programs. CCDA has monitoring in place. CCDA assisted in a bond-refinancing program for a low to very low-income senior housing project to preserve these units for this population. City is in compliance with the stated policy. - Recommend continue policy. City is in compliance with the stated policy. - Recommend continue policy. City is in compliance with the stated policy. - Recommend continue policy. City is in compliance with the stated policy. - Recommend continue policy. CCDA performance measures are in compliance with this policy. - Recommend continue policy. Goal 4: To maintain and improve the quality of the existing housing stock and the neighborhoods in which they are located. The Clovis Community Development Agency has developed a home maintenance program that assists low-income senior homeowners in maintaining their existing homes. This program benefited 366 homes since the adoption of the 1993 Housing Element through maintenance, rehabilitation, or new construction. The City of Clovis also maintains an active program to Clovis General Plan Housing Element 4-15